PUBLIC SERVICE COMMISSION (THIRTY-EIGHTH REPORT OF THE)

Appendix to the Journals of the House of Representatives, 1950 Session I, H-14

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1950 NEW ZEALAND

PUBLIC SERVICE COMMISSION (THIRTY-EIGHTH REPORT OF THE)

Presented to Both Homes of the General Assembly by Command of His Excellency

To His Excellency Lieutenant-General Sir Bernard Cyril Freyberg, Victoria Cross, Knight Grand Cross of the Most Distinguished Order of St. Michael and St. George, Knight Commander of the Most Honourable Order of the Bath, Knight Commander of the Most Excellent Order of the British Empire, Companion of the Distinguished Service Order, Governor-General and Commander-in-Chief in and over His Majesty's Dominion of New Zealand and its Dependencies. May it Please Your Excellency,— We have the honour to submit the following report on the Public Service.

CONTENTS

PAO». Introductory .. .. .. .. .. .. .. .. 3 The Condition and Efficiency of the Public Service .. .. .. 3 Steps Taken to Improve Efficiency— Inspection of Departments .. .. .. .. .. .. 3 O and M .. .. .. .. .. .. .. .. 4 Staff Training .. .. .. .. .. .. .. .. 4 Education .. .. .. .. .. .. .. .. 4 Bursaries .. .. .. .. .. .. .. .. 4 Overseas Study .. .. .. .. .. .. .. 5 Removal of Examination Barriers .. .. .. .. .. 5 Welfare .. .. .. .. .. .. .. .. 5 Magazine Public Service .. .. .. .. .. .. .. 5 Recognition of Ability and Merit .. .. .. .. .. .. .. 6 Promotion by Merit .. .. .. .. .. .. .. .. 6 Rewards for Suggestions .. .. .. .. .. .. .. .. 6 Amalgamations .. .. .. .. .. .. .. 6 Support of New Zealand Institute of Public Administration .. .. .. 7

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CONTENTS—continued Some Current Problems— page Staffing: General .. .. .. .. .. .. .. 8 Staffing: Cadets and Other Juniors .. .. .. .. 8 Staffing: Shorthand-typists, Typists, and Machinists .. .. .. 9 Staffing: Professional Officers .. .. .. .. .. .. 9 Positions Graded Above £1,060 Per Annum .. .. .. .. 10 Staff Turnover .. .. .. .. .. .. .. .. .. 10 Office Accommodation .. .. .. . . -. -. .. 10 Hostel Accommodation .. .. .. • ■ .. - • . ■ ..11 Housing of Public Servants on Transfer .. .. .. .. .. .. 11 Personal Reports on Employees .. .. .. .. .. .. 11 Communism .. .. .. .. .. .. .. .. 12 Politics and the Public Service .. .. .. .. .. .. .. 12 The Holmes Case ; and Probation.. .. .. .. .. .. 13 Government Service Tribunal— Constitution .. .. .. .. .. .. .. .. 14 Orders .. .. .. . . .. .. .. .. .. 14 Conciliation . . .. .. .. .. .. .. .. 15 Effect of Tribunal System .. .. .. .. .. .. .. 15 Tribunal and the 1951 General Regrading .. .. .. .. .. 15 Staff Employed and Salaries— Staff Employed .. .. .. .. .. .. .. .. 15 General Salary Increase : Government Service Tribunal .. .. .. .. 16 General— Seniority . . .. .. .. .. .. .. .. .. 16 Appeals .. .. .. .. .. .. .. .. .. 16 Public Service Regulations and Manual of Instructions .. .. .. 16 Designation of Permanent Heads .. .. .. .. .. .. 17 Administrative Appointments .. .. .. .. .. .. 17 Promotion Policy, Administrative Appointments .. .. .. .. 17 List of Temporary Employees .. .. .. .. .. .. 17 Leave on Retirement from the Public Service .. .. .. .. 18 Anticipation of Retiring-leave .. .. .. .. .. .. ..18 Representation Outside Wellington .. .. .. .. .. 18 Islands Administration— Samoan Public Service .. .. .. . . .. .. .. 18 Cook Islands Public Service .. .. .. .. .. .. 19 Administration of Chatham Islands .. .. .. .. .. 19 Fiji .. .. .. .. .. .. .. .. .. .19 Acknowledgment .. .. .. .. .. .. .. .. .. 20 Appendices— Table I—Public Service Classification List, 1949-50 : Distribution of Permanent Staff by Departments as at Ist April, 1949 .. .. .. .. 21 Table II —Public Service Classification List, 1949-50 : Distribution of Permanent Staff by Grades, Divisions, and Sex Composition as at Ist April, 1949 .. 22 Table lll—Temporary Employees as at Ist April, 1949 .. .. .. .. 23 Table IV —Casual Employees as at Ist April, 1949, Engaged in Terms of Public Service Regulation 150 .. .. .. .. .. .. .. 24 Table V —Permanent Staff Turnover, Year Ended 31st March, 1950 .. .. 25 Table Vl—Representatives of Public Service Commission Outside Wellington .. .. 26

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REPORT

INTRODUCTORY In terms of the Public Service Act, 1912, we are required to report on " the condition and efficiency of the Public Service." This is the thirty-eighth annual report since nonpolitical control of the Service was established under that Act; it is our fourth report as a Commission since we were appointed under the Public Service Amendment Act, 1946. The past year has been one in which the difficulties and limitations referred to in our earlier reports have continued : shortage of essential staff, relative to the expanded and varied tasks of Government administration ; a still excessive number of separate Departments ; poor, inadequate, and temporary office accommodation, which can only be corrected by putting up new buildings in several centres ; housing difficulties, making it unreasonably difficult for officers to put their best into their work, and certainly stopping good officers from accepting transfers, even on promotion. Many of these, of course, are troubles not confined to the Public Service ; we suffer from them in common with the rest of the country. It has been gratifying, and not surprising to any one familiar with the Public Service, to note that the departmental and administrative problems involved in the change of Government following the 1949 general election were satisfactorily met. In line with the now well-established tradition, the new Government, without a single exception to our knowledge, took over and continued to use the services of all officials who were serving under the preceding Government; the disinterested, impartial co-operation that was to be expected of the Public Service has been given ; and both the new Administration and the outgoing one have been generous in expressing appreciation of the good and loyal work of the Service. THE CONDITION AND EFFICIENCY OF THE PUBLIC SERVICE In the following paragraphs steps taken to improve the efficiency of the Service are mentioned. These are not the whole answer to the problem. The Commission can do little compared with what Departments can do for themselves. Our aim is to instil into responsible officers an awareness of the need to promote efficiency in their Departments ; to continually and critically scrutinize establishments, organization, and methods ; to look to the education, training, and welfare of employees. Efficiency in any Department rests primarily on its controlling officers. With good controlling officers prepared to lead, both by example and precept, and to display real interest in their work and staff, efficiency will take care of itself. STEPS TAKEN TO IMPROVE EFFICIENCY Inspection of Departments During the year many full-scale inspections have been carried out by the Commission's staff in Wellington, Auckland, and Christchurch; establishments, organization, and methods have been reviewed. Also, departmental offices in east and west coast towns of the North Island and in Nelson and Blenheim were visited, thereby completing the inspection of the Service outside Wellington. A good spirit was found throughout. With few exceptions, district offices are reasonably staffed and able to handle their work with despatch. In some cases branches would not suffer unduly if called upon to provide one ©r. two officers for transfer to Wellington, where the need is greater. Such transfers, however, are seldom welcomed, and when enforced .may lead to rancour or resignations.

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0 AND M The 0 and M movement (for improved organization and methods) was referred to in our last report. Progress since then has been maintained through the agency of 0 and M Committees in all but a few small Departments. Part-time Committees, however, have limited scope, and it may be better in the long-run to have a full-time specialist on 0 and M work in each major Department. At present the only Department with an 0 and M officer on the staff is the Department of Agriculture, and the savings achieved there in time, money, and staff have been gratifying. The Commission's encouragement of 0 and M in all Departments has stimulated suggestions from the rank and file. Staff Training With the experience gained from organized staff training in New Zealand, plus the cumulative experience of overseas training organizations, we now have a well-tried scheme suited to the needs of the Public Service. In Departments, where the great bulk of training is done, the programmes are closely related to current work, although some attention is given to background. More stress is being laid on the importance of training supervisors and on the need for methodical instruction on the job. T.W.I. (Training Within Industry) methods are being extended. The Commission recognizes that its essential function in staff training lies in planning staff-training policy, in passing on information on developments in methods here and overseas, and in stimulating interest in Departments. This activity is supplemented by a number of training projects that can best be carried out by a central agency. We have continued with our usual programme of courses : some are complete in themselves, and others, like the course in supervision, are designed to provide Departments with a framework on which to build suitable short courses of their own. Education The policy of encouraging officers to improve their education has been continued, and, in addition to awards of bursaries, referred to elsewhere in this report, students taking approved courses are allowed leave to attend lectures (a maximum of three hours per week —five hours in the case of ex-servicemen—being allowed on pay); in some cases leave without pay for the University session is granted to those wishing to study full-time. The Commission conducts two examinations for the Clerical Division —the Qualifying Examination for employees who have no entrance qualification to the Clerical Division, and the Senior Examination, which until last year was the basic requirement for promotion beyond Class V. Although the salary bar has been removed, this examination is continued as a desirable qualification with a decided Public Service bias. Tuition is provided by the Commission with substantial help from the Education Department's CorrespondenceSchool. Bursaries Bursaries in science and engineering were again made available on a competitive basig. Primarily because the fields were smaller, but partly because a higher standard was set, only fourteen awards were made, compared with forty-two in 1949. Internal bursaries in science, engineering, and architecture were also awarded to outstanding technical trainees and engineering and architectural cadets. Tho progress of all 1949 bursars was critically examined. With few exceptions their selection promise was maintained, and the awards clearly justified. Three bursaries were cancelled and three deferred for a year. Five bursaries were also awarded to officers to complete Honours: degrees, and eight officers were sent on full-time bursaries to Victoria University College-, to take the Diploma course in the newly created social science department of that college

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Overseas Study In its admirable report on training presented to the British Government in 1944 the Assheton Committee recommended that promising Civil servants —say, in the earlythirties —should be granted a period of sabbatical leave for study or research either in Great Britain or abroad. They also strongly recommended that promising Civil servants should be given an opportunity to travel abroad to study aspects of government or public administration likely to be of value. It was their intention that the recommendations should be applied to professional as well as administrative officers. In a modest way this policy has been followed within the New Zealand Public Service. A few officers have been granted leave on full pay or half-pay to study overseas in fields of importance to New Zealand. Partly as a recruiting measure (for more and better staff is still needed), the Commission favours granting sabbatical leave to medical officers who undertake a Public Service career to enable them to travel abroad after a few years in the New Zealand Public Service. Plans to this end are well advanced. Apart from what is done officially in the w.ay of granting pay, financial assistance for overseas travel and study is provided from time to time by such institutions as the Commonwealth Fund, the Carnegie Corporation, the British Council, the Imperial Relations Trust, and also under the Fulbright Scheme. Recently Mr. S. T. Barnett, Under-Secretary, Justice and Prisons Department, left to study administrative developments overseas under a grant by the Carnegie Corporation, supplemented by assistance under the Fulbright Scheme. Mr. J. H. Watt, Horticultural Division, Agriculture Department, has been awarded a Commonwealth Fund fellowship on generous terms to study horticultural economics in the United States. Miss J. W. Combs, Broadcasting Service, has been similarly assisted by the Imperial Relations Trust to study broadcasting in England. Awards and grants made in this and other years are much appreciated. The experience they bring to public servants is of great value both to the recipients and to the Public Service. Removal of Examination Barriers During 1949 the Commission abolished the salary barrier which had previously existed at the top of Class V. Although examination qualifications are given weight, merit and efficiency must be the primary factors in promotion policy. In fine with general policy, other rigid examination barriers to promotion have been removed, except for certain special groups where the possession of particular examination qualifications is still considered essential. Welfare The effectiveness of the attention given to welfare in any Department is reflected in the morale of the staff, and has an important bearing on efficiency. Welfare work is best carried out on the spot by controlling officers, but problems arise from time to time that require special attention. These become the concern of the departmental personnel officers, who, when necessary, can discuss them with this office. Since the appointment to the staff of the Commission of a Welfare Officer (female staff), many individual and departmental problems have been dealt with. There has been a close liaison between the Welfare Officer and departmental personnel officers and controlling officers. Some improvement has been made in accommodation, facilities, and departmental amenities. Magazine " Public Service " The magazines 0 and M Review and Staff Training Bulletin, produced in recent years to promote efficiency in the Service, are no longer published. A new magazine—Public Service —takes their place. The title is significant of its aim, which is somewhat wider

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than the objects of its predecessors. The economy of one publication instead of two will in no way detract from the main objective—the promotion of efficiency in the Service. The new publication will contain articles on organization and methods and staff training ; it will be used to acquaint public servants with the reasons for Commission's decisionswhich affect them generally ; and to maintain the highest standard of service to the public. Recognition of Ability and Merit The Commission has continued to reward merit and ability by special salary increments, and Departments have taken full advantage of this policy. This year the Commission has carried its policy further. To encourage and reward young and deserving officers it applied to the Government Service Tribunal for an order giving overlapping Class VI and Class V salary scales. The Public Service Association agreed to this claim in conciliation and it went forward to the Tribunal as an agreed item. The order increased the salary steps in Class V from two to four, the two lower steps corresponding with the two top steps in the Class VI scale. With this overlapping scale the Commission is able to promote to Class V young officers who would not otherwise qualify for promotion. In every case of promotion under the new system —and there have been many —the officer concerned receives not only accelerated promotion but special salary increments, in every case a double increment at least. Promotion by Merit One of the most persistent, damaging, and false misconceptions about the Public Service is the notion that advancement in it goes merely or mainly by seniority ; this in contrast (the fallacy commonly proceeds) with business, professional, and commercial life, where exceptional merit and industry are supposed to be quickly rewarded. If it were so, if the advantages for able young people were clearly in favour of a career outside the Service if promotion by seniority were in fact the distinguishing mark of the Service, the Public Service would, of course, be unattractive; and any administration that allowed this deadening practice would rightly be criticized. But it is not so. On the contrary, while the Service has clearly defined salary scales and avenues of promotion, it allows and encourages exceptionally quick promotion, with special salary increases in advance of the usual scale, to officers of outstanding merit. Young people joining the Service are thus considered, when each year's Classification List is being prepared, for special increments. At all levels above the lowest or basic grade for first entry into the Service, vacancies are openly notified so that all persons in the Department concerned, or elsewhere in the Service, or—sometimes, and subject to restricted eligibility—persons outside the Public Service, may apply for higher positions. Their claims are thoroughly and fairly considered. As to promotion depending on the relatively unimportant factor of seniority, statistics prove that in only one-seventh of the appointments made over a typical recent period in our Public Service has the senior applicant been chosen. In these cases the senior applicant was regarded as being at least as suitable and efficient as any other applicant. Rewards for Suggestions From time to time the Commission, by notice published in the Public Service Official Circular, invites suggestions from employees. This, plus the interest stimulated in 0 and M work, has brought forth many worthy ideas. During the year the Commission adjudicated on sixty-two suggestions, and in meritorious cases granted rewards ranging from £2 to £25. Amalgamations Amalgamations of Departments can only be justified to the extent that they increase the efficiency of administration. The Commission is satisfied that a number of proposed amalgamations will increase efficiency and will press for them to be brought about. The

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Service under the Commission's control is to-day grouped into thirty-nine Departments. This number is less than it was but still more than it should be. Amalgamations of Departments or transfers of functions that have been effected since 1946 include—(i) Department of Labour and the National Employment Service into the Department of Labour and Employment. (ii) Department of Mental Hospitals merged with Department of Health. (iii) The Internal Marketing, the Milk Marketing, and the Export Marketing Divisions grouped into a Marketing Department. (iv) The Ministry of Works and Department of Public Works merged. (v) Stamp Duties Department amalgamated with Land and Income Tax Department. (vi) Land and Deeds Department transferred to Justice Department as the nucleus of a proposed General Registry Office. (vii) Electoral work transferred from Internal Affairs Department to Justice Department. Further amalgamations such as the following are worthy of consideration : (i) Army, Navy, and Air Departments into a Ministry of Defence. (ii) Island Territories Department with External Affairs Department. (iii) Marine Department, Civil Aviation Branch of Air Department, and Transport Department into a Ministry of Transport. (iv) Physical Welfare Branch of Internal Affairs Department with the Physical Education Branch of Education Department. (v) Rehabilitation Department functions to be distributed among State Advances, Labour and Employment, and Lands and Survey Departments. (vi) All Government valuation work to Valuation Department. Much overlapping in administration, with confusion to the public, is caused by land-valuation work being conducted by several Government authorities; and the Government has been recommended to approve of its all being undertaken by the Valuation Department. This subject was thoroughly examined by an inter-departmental committee set up, with Ministerial approval, in 1947. It was unanimous in recommending that all Government valuation work be undertaken by one competent authority. Cabinet recently approved of all valuation work, other than that undertaken by the State Advances Corporation, being handed over to Valuation Department. Although this is something achieved, the Commission still considers that there should be but one valuing authority. The difficulties of completing an amalgamation, such as the need for legislation, suitable accommodation, and staff adjustments, make progress slow. They are not insuperable difficulties by any means, as experience has shown already. This problem of streamlining State services is found in many countries to-day, and is not peculiar to New Zealand. A recent report from the United States reads : As Congress considers the Hoover Commission report on the reorganization of the executive branch of the Federal Government, legislatives in twenty-seven States have authorized reorganization studies or investigations. The Commission is convinced that the progress of review should be a continuing one. New Zealand Institute of Public Administration The primary objectives of the Institute are — (а) Promotion of the study of public administration. (б) Development of the Public Service as a recognized profession.

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Most of the Institute's seven hundred members are public servants. What they can gain in working toward the Institute's objectives can only result in enhancing their value as public servants and, to some extent at least, increasing efficiency in the Service. It is for this reason that the Commission has supported the Institute and encouraged officers to join it. The increasing interest public servants are taking in its activities is gratifying. The Institute has branches in the four main centres. Members are giving their own time to hear addresses by authorities on various aspects of public administration and make up study groups to investigate and report on particular administrative problems. The findings of some of the groups have been helpful to the Commission. The national executive conducts annual conferences and conventions, where major administrative problems are discussed. It publishes both a six-monthly journal and a two-monthly newsletter dealing with current problems. SOME CURRENT PROBLEMS Staffing : General The recruitment of suitable staff still presents a problem in those centres where a state of over-full employment leads to keen competition. There has been an easing in some of the smaller centres, especially in the South Island, and the Commission has been able to be more selective in such towns. Immigration has assisted greatly in meeting some of the more acute shortages of staff. During the year assisted immigrants in the following categories were placed in centres with the greatest shortages : Mental nurses (trained and trainees) .. .. 30 Home aids .. .. .. .. .. .. 9 Shorthand-typists and typists .. .. .. .. 75 Clerical workers (female) .. .. .. .. 142 Forestry workers.. .. .. .. .. .. 122 In addition, numbers of tradesmen and labourers were allocated to Government Departments, and many other new arrivals in New Zealand who arranged their own passages were recruited as clerical workers, &c. ' Staffing : Cadets and Other Juniors The most important form of recruitment is that of juniors. The Public Service attracts many, though not enough, young persons just leaving school. That there are not enough of them arises not only from the abnormally strong competition from other employment, but also from the low birth-rate of the 1931-34 depression. With difficulty, over-all recruitment of juniors has been maintained at the level of the previous year; but there was a further small reduction in the number of clerical cadets obtained. Juniors who joined the Service from December, 1949, to March, 1950, were : Clerical cadets — Boys .. .. .. .. .. 206 Girls .. .. .. .. .. 192 398 Clerical assistants .. .. .. .. .. 92 Shorthand-typists and typists .. .. .. .. 168 Apprentices .. .. .. .. .. .. 78 Draughting cadets .. .. .. .. .. 101 Rural field cadets .. .. .. .. .. 17 Technical trainees .. .. .. .. .. 114 Student dental nurses .. .. .. .. .. 90 Others .. .. .. .. .. .. 48 1,106

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Sufficient young people are entering the Service to give us a fair opportunity to judge the results of the national education system. Our experience is satisfactory and -encouraging. No doubt some allowance is to be made for the fact that a career in the Public Service is apt to attract and retain the more responsible type who weigh longerterm considerations when choosing their career. Yet, allowing for this, no one can help being impressed by the quality and the maturity of school-leavers entering Government Departments. With their good quality and inadequate numbers, young persons who •enter the Public Service have excellent prospects of advancement. Staffing : Shorthand-typists, Typists, and Machinists Transfers of officers from other districts in a relieving capacity are still being encouraged to meet the difficult staffing position in Wellington. Full use has been made of accommodation available at Government hostels. Some of the larger Departments are relying on such assistance to keep the typing work under control. Despite the long-standing shortage of typing staff, the Commission has not relaxed its requirement for the attainment of definite standards, and promotion is based on the passing of certain examinations. This has increased the difficulty of recruiting qualified juniors, as attractive offers are accepted before the Public Service standard has been reached. This is particularly so in Wellington, and to meet this situation the Commission's shorthand and typewriting school was opened last year. This operates in two classes, with at present twenty-five students in each. There is also a waiting-list. Tuition at the school ceases when the Public Service Junior Shorthand and Typewriting Examination has been passed or if satisfactory progress is not being made. Students undertake to remain in the Service for up to two years after qualifying at the school. Staffing difficulties are also affecting the operation of punched-card machines. Installations are centralized in Wellington, and the expanding use of this type of machinery, combined with the difficulty of recruiting suitable labour for the operation of plants, is causing the Commission considerable concern. Yarious methods of meeting the situation are being considered in consultation with Departments affected. Staffing : Professional Officers The Service is seriously undermanned in most professional groups such as doctors, dentists, engineers, architects, and surveyors. " Scarcity value " makes the problem of recruiting and retaining professional officers one of the utmost difficulty. Endeavours to recruit them from overseas have met with but limited success, in spite of offers to pay fares and other expenses incidental to taking up appointment. It is particularly difficult to recruit medical officers to staff hospitals operated by the Health Department and to fill vacant positions as Medical Officers of Health in the districts. Nor are dentists any more readily obtainable to fill positions in the Dental Division with its greatly expanded service to the children of New Zealand. Undoubtedly the salaries paid, up to the present, have not been sufficient to attract enough suitably qualified men. While salaries for senior professional posts in the Health Department have not, until recently at least, been high enough, the root cause is the exceptional earnings by men of the two professions in outside practice. Earnings under the social security scheme have made nearly impossible the adequate staffing of Government Departments. Still further complicating the issue from the Commission's point of view is the independent fixation of salaries for medical officers employed by Hospital Boards under the Hospital Employment Regulations. These regulations have provided salaries, paid from public funds, in excess of salaries paid to medical officers in institutions under the control of the Health Department.

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The " scarcity value " that has to be paid in fixing the remuneration of some professional groups as compared with others that have comparable or almost comparable periods of training before qualifications causes anomalies that should not be allowed to continue indefinitely. The fact that a first-year remuneration of over £1,600 has had to be paid to a doctor (age twenty-four and qualified in 1949) to fill a vacancy for Assistant Medical Officer, Western Samoa, clearly illustrates this abnormal situation. Nor do the remedies that have so far been applied appear to be adequate. In order to share in the high earnings in private practice, many bursars from the medical and dental schools purchase their release from obligations entered into when the bursary was granted. Doctors and dentists recruited from overseas are similarly attracted, or return to England to enter practice now that the national health scheme has extended opportunities there. Dental work for some children in New Zealand is being carried out to-day by outside dentists at a considerably higher cost than if it were performed by an adequately staffed Dental Division of the Department of Health. There seems to be no remedy other than to train sufficient doctors and dentists so that rates of earnings will be brought more into line with those of other sections of the community. Meantime the Commission has recommended the Government toincrease salaries to enable State services to be carried on. Positions Graded Above £1,060 Per Annum At the present time the authority of the Commission to regrade positions or create new ones is limited by the fact that any salary over £1,060 per annum for officers in the Clerical and Professional Divisions requires individual parliamentary appropriation. All salaries of officers in the Administrative Division must, by statute, be fixed by Parliament. The Commission agrees that Administrative Division salaries should be so fixed. This gives to Parliament the right to set the " ceiling " of Public Service salaries, and no great exception can be taken to this. However, the requirement for individual appropriation for salaries beyond £1,060' for other than administrative officers is a considerable restriction on the Commission in its task of correctly grading officers. The Consultative Committee in 1945 recommended that the requirement for appropriation be lifted to above £1,500. This recommendation has been renewed to Government by the Commission. Staff Turnover Post-war conditions of full employment have resulted in high resignation rates in almost every industry. The Public Service is no exception. Before the war the average annual turnover of staff in the Service was less than 5 per cent. To-day in the permanent staff it is 10 per cent, for males and 25 per cent, for females. Naturally, the heavy rate of turnover causes particular concern to the Commission, since it is required to find replacements for the staff lost. Full details of staff turnover are set out in Table V of the Appendix. To give some idea, however, of the magnitude of the task of recruitment for ordinary replacements of staff it is necessary to find each year approximately 500 typists and machinists, 1,000 male and 800 female clerks and clerical assistants, 100 professional and technical officers, 200 males and 400 females for mental hospitals, dental clinics, and other institutions, and a further 700 males and 200 females for various work. In all, about 4,000 replacements a year are needed. Office Accommodation Accommodation problems persist in most towns where Departments are represented,, but the greatest shortage is still in Wellington. No new buildings have been commenced during the year and the Office Accommodation Board has had to rely on the conversion of old buildings and leases of privately owned space to meet the most pressing demands.

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This is often costly in terms of both cash, and efficiency. It seldom enables the Board to group together Departments which have related functions or to effect amalgamations so desirable for good administration. The expenditure of large sums on alterations and renovations cannot be avoided so long as it is necessary to adapt buildings which were not designed for departmental purposes. The Board's staff continually inspects existing offices to ensure that the best possible use is made of all space occupied by Departments and to reduce overcrowding to a minimum. The Board is concerned that Departments are in so many privately owned buildings which are wanted by private firms. In some cases, owners have terminated the tenancies but the space cannot be released. In others, the Board is unable to negotiate a satisfactory lease because the landlord seeks a rent in excess of the amount allowed under the Tenancy Act. It is recognized that, while shortages of materials and labour continue, priorities must be fixed in the erection of new buildings, but the planning and construction of permanent new office buildings must take its place in national development. Scarcely any new office buildings have been erected for more than ten years. It would probably be another five years before any major building is ready, even if started now. If administration is to be efficient and economical a good standard of office accommodation, suitably designed for the needs of particular Departments, is essential. The Board therefore urges that in the coming year provision should be made to start some new buildings which are urgently needed. Hostel Accommodation No hostels have been acquired during the year, as it was hoped that the erection of a new hostel in Wellington would meet present needs for male cadets. Plans have been completed, and tenders can be called as soon as the expenditure is authorized. Many young people will not come to Wellington because suitable private board at a reasonable rate is so scarce, but if hostel accommodation could be assured on arrival, recruitment would be helped. The provision of hostels with facilities for study not only assists in the recruiting of young people, but also helps to promote efficiency and to reduce staff turnover. Housing of Public Servants on Transfer As with the general community, housing for public servants is still a major problem. Multiple exchanges are the chief means of settling those on transfer, but this applies only to officers who can make their present homes available for other public servants and to those who are occupying State tenancies. During the year accommodation for 360 public servants has been arranged by the Public Service Commission's Housing Bureau ; 286 still have applications for housing assistance recorded with the Bureau, and of these 142 are unable to secure their former private homes for a successor, which renders their settlement extremely difficult. It has not been possible to do much to assist officers who are unable to make their present homes available for exchange, and the only method of settling these people is the provision of houses by the Government. We welcome the promise of action on these lines. Comprehensive recommendations for the allocation of State houses have already been submitted by the Commission. The long separation of an officer from his family, apart from the harmful social effects, tends to reduce his efficiency and costs a substantial amount in accommodation allowances. Personal Reports on Employees Reports on employees were called for as at 30th September, 1949, the previous marking being on 31st January, 1948. Periodically it is desirable to make a comprehensive evaluation of staff in order that the system of promotion by merit rather than by seniority may be more effective.

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Any form of reporting on staff is subject to defects ; the Commission has tried various systems and examined many more. The greatest difficulty from an administrative viewpoint is to achieve a complete standard of uniformity in marking among local controlling officers and also among Departments. This entails the issue of detailed instructions, including comprehensive statistical data, on standard averages for groups and graphs for distribution of marks. The Commission recognizes that the success of the reporting system depends on the local reporting officers. Most of these officers make an honest assessment of the relative merits of their staff. These assessments in turn have to be correlated into merit lists for whole Departments and then for the whole Service. Obviously, at some points assessments are not perfect and it would be wrong to imagine there can be no cause for complaint. The use of staff committees to correlate the markings of local controlling officers is, however, a further useful safeguard. Both time and thought are being devoted to research on this problem. Some system of regular reporting is necessary, but the Commission's policy is that reports are not the main or only factor in promotion. They represent but one element in the process of assessing the. best applicant for a job. Staff is to be reported on again as at 31st January, 1951. In an endeavour to lessen •the work involved, the Commission proposes to exclude certain basic-grade groups from the marking. Communism Two years ago we reported (H-14,1948, p. 13) that due precautions were being taken against appointing Communists to, or letting them stay in, security positions in the Public Service. These precautions continue. To the best of our knowledge no Communists are, or under existing conditions will be, employed in any security position. They are excluded altogether from the Air, Army, Navy, External Affairs, and Scientific and Industrial Research Departments. The power of the Commission so to act was challenged in the law-courts by Mr. G. M. Deynzer, formerly an officer of the Department of Scientific and Industrial Research, and understood to be —this was not denied by him when an opportunity was given him—a member of the Communist party. He was transferred to the Social Security Department. So far, at the time of preparing this report, the Court's judgment has upheld the Commission's action ; but final judgment has yet to be given by the Court of Appeal. We think that, whatever the judgment, the issue should v be put beyond doubt by legislation. In our 1949 report we recommended that — Clear legislative authority be given to the Commission to move from security positions in the Public Service persons with Communist or like affiliations, and that they should have the right of recourse to the Public Service Board of Appeal against dismissal or reduction in salary. No legislative action was taken ; we now repeat the recommendation. Politics and the Public Service In accordance with the rights conferred by the Political Disabilities Removal Act, 1936, several public servants were candidates for Parliament in the 1949 general election, pledged variously to support the then Government, or the then Opposition and new Government, or, in the case of one fairly senior officer, the Communist party. In keeping, too, with the spirit of that Act, there has been no limit to the permitted party political activity of any public servant. Inasmuch as this issue is for the present virtually closed in New Zealand, both parties in the recent election having promised to make no change, little purpose is to be served in pursuing it here. Whatever the law may allow —it would, for example, be lawful for the head of a Department to contest a seat against his own Minister and, being defeated, to present himself the day after the election as his opponent's principal

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departmental advisor !—we are the first to admit that our Public Service has not in fact been ruined by the new dispensation. The tradition of responsible public servants' political impartiality and reserve in controversial issues in politics is a well-established one; the unlimited licence to act otherwise has not been availed of. Yet we think the* danger is there and that in due time, in fairness both to the Public Service and to the community, the subject should be reconsidered. None of us would wish to lessen the rights or duties of a public servant as a citizen ; but we think that, consistent with these, it may well be made clear in the law as it is in practice that active participation in party political controversy does not rightly fall to career public servants, obliged as they are impartially to serve successive Governments in a democracy. We quote in this connection the words of the then Leader of the Opposition (now Prime Minister) in the Australian Commonwealth Parliament (June, 1949) : Suppose at the forthcoming election the present Opposition parties succeed and are called upon to form a Government. Suppose that, in such a Government, I find myself Minister for External Affairs; I shall be met, on my first morning, by the permanent head of the Department of External Affairs, who has pledged himself publicly to defeat me and who, but for the accident of his non-selection, would have been a candidate against a member of my party at the elections. Am I supposed to give him my confidence ? Am I supposed to say to him, "Of course, I understand that your dearest wish was to defeat me, but I can accept everything that you tell me because I know that whatever you tell me will be calculated to make my administration of this Department successful ? " We are not living in a world of archangels. We are living in a world of human beings, so let us talk sense about this matter. I could not have any confidence in the advice of the head of a Department in those circumstances, and I would not tolerate him as a head of a department. The result of that—and I urge all honourable members to consider this—is that, should this practice be accepted as general, instead of being only a stark, staring exception as it is now, we should find the heads of Departments changing with every change of Government. I cannot imagine anything more deplorable . . . The moment a Government says that the kind of thing under discussion is permissible that Government makes an attack on the Public Service and turns it from being highly respected, objective, and independent into something that is the mere servant of the political mood of the moment and in which the top ranks must be changed with every change of party administration. The Holmes Case ; Probation Over a long period, indeed ever since the Public Service Act was passed in 1912, it has been assumed that public servants should serve in the first instance on probation ; that their work and conduct then should determine whether they are fitted for a Public Service career ; that while on probation their employment may be summarily ended ; and that, recognizing the important distinction between the provisional status of the probationer and the full status of the established public servant, nothing short of explicit written confirmation, made after necessary reports have been considered, should serve to give a person the status of a permanent officer. These assumptions have been brought into question by judicial decisions during the past year. The case involving them raised issues important enough, and has certainly been the subject of misunderstanding and misrepresentation enough, to justify a short recital of the essential facts; It had been reported in the press that a large meeting of public servants in Wellington had threatened to hold a stop-work meeting in office hours if one of the Public Service Association's demands (for setting up a salaries tribunal) was not agreed to. The Commission issued a warning that any one so ceasing duty would be liable to dismissal in accordance with the Public Service Act. Generally the effect of the warning was salutary. No stop-work meeting was held without authority (under exceptional circumstances, as where shift-workers are involved, the Commission has elsewhere agreed to stop-work meetings). Presently, however, the Commission was informed that a stop-work meeting had been called at the National Film Studios in Wellington ; and, later, documents were put before it showing that Mr. C. Holmes, recorded as a probationary employee there, had been responsible. His appointment was annulled. The action taken was not because of the employee's membership of the Communist party, nor related to his political views. This was made clear to him in the course of

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a long interview with the Commission; he was assured that if similar action to call a stop-work meeting were taken at his place of employment by any one not a member of the Communist party, but a supporter of any other, or of no other, party, the Commission would take like disciplinary action ; he was given every opportunity to discuss and defend his action; but the prior decision to annul his appointment was confirmed. He was not regarded as a suitable person for employment in the Public Service, and this notwithstanding his admitted technical competence in his work. The first judgment of the Court was that it was a denial of " natural justice " to terminate even a probationer's appointment without first hearing him—as mentioned above, Mr. Holmes was later seen, when the earlier decision was confirmed. This basis for the judgment was subsequently reversed by the Court of Appeal, which however, by a majority decision, held that Mr. Holmes was not a probationer but that his appointment as a permanent officer had been inferentially confirmed; this being so, he was entitled to all the rights of an officer, and had not been properly dismissed. Following the judgment of the Supreme Court, Mr. Holmes was restored to his former position ; he resigned before the judgment of the Court of Appeal was delivered. For the good administration of the Public Service, the one unfortunate result of the decision is that it removes the clearness of the distinction hitherto understood to exist, and it is important, between the status of a probationer and the status of a permanent officer. The Chief Justice was in a minority in the Court of Appeal in holding that— The appointment of an officer in the Public Service should be by a definite authoritative official act. No permanent position, once the period of probation has passed, should be dependent on inference or presumption with uncertainties as to date of commencement and such like, and I think the Legislature intended this when enacting section 39 (of the Public Service Act, 1912) . . . confirmation in the Service is a matter of importance and responsibility and should not be left to inference from facts and circumstances which may themselves be equivocal. The Commission recommends that legislation be passed requiring that probation be confirmed explicitly, not by inference. GOVERNMENT SERVICE TRIBUNAL Constitution As originally constituted, the Tribunal comprised three members, one of whom was Chairman. By amending legislation passed in 1949 the three-member Tribunal became, in effect, a five-member body, the two assessors (one employee, one employer) being given power to vote. The amending legislation also extended the power of the Tribunal to amend orders, and made provision, at the option of either party, for conciliation proceedings before an ad hoc conciliator appointed by the Prime Minister. Orders During the year the Tribunal issued orders affecting employees represented by some nineteen Service organizations. The orders increased salaries and wages to conform with the standard wage pronouncement made by the Court of Arbitration in 1949. Eleven major orders were issued, two affecting the Public Service proper and nine governing rates of pay and working conditions for about 12,000 out of some 20,000 casual workmen engaged in terms of Public Service Regulation 150 on such undertakings as land drainage and development, hydro-electric construction, highway and road maintenance, construction of Maori houses, food storage and processing, establishment and maintenance of State forests, power-station operation, and the National Orchestra.

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Conciliation The Commission's application for an order to apply the provisions of the standard wage pronouncement to employees other than casual workmen resulted in seven days of conciliation proceedings with the Public Service Association under the appointed conciliator, Mr. B. L. Dallard. Agreement was reached only on one minor point, and that during the first day of proceedings. On the other hand, conciliation proceedings with the industrial unions representing the casual-workmen groups have been on a very satisfactory basis and really effective. In fact, complete agreement was reached on all matters at issue in respect of seven orders covering approximately 11,000 workmen. Only two orders required argument before the Tribunal. Not only were the parties able to exchange views and gain a better understanding of each other's problems, but the matters at issue were thoroughly sifted before being taken to the Tribunal. The result has been that many matters have been settled and referred to the Tribunal as agreed items for approval, rather than as claims and counter-claims for adjustment. Effect of Tribunal System That the operations of the Tribunal, in so far as they affect the casual-workmen groups, have been generally acceptable to the parties appears to be indicated by the absence of disputes of any moment. Indeed, the present system is a welcome change from the previous method, which was the subject of comment in our report for 1948. Then, conditions and rates of pay were finally determined by the appropriate Minister after a process of conciliation between union, Department, and Commission. However, so far as the permanent Public Service is concerned, experience has shown that the Tribunal system does not allow for the flexibility essential to sound administration. Under the present set-up the Commission may not approve any general salary increase nor regrade any occupational group without first submitting an application to the Tribunal. Inevitably, this delays administrative action. The proceedings which led up to the Tribunal's final decision applying the provisions of the standard wage pronouncement to the Public Service extended over four months. An application — lodged by the Commission in December last—to increase the salaries of certain prisons staff in the Justice and Prisons Department has not yet been heard by the Tribunal. Tribunal and the 1951 General Regrading The Commission is required by law to " regrade (all) officers at intervals of not more than five years." The last general regrading took place in 1946; the next is due in 1951. In the interim the number of " officers " in the Service has increased from 12,599 to nearly 30,000 through the transfer of temporary employees to the permanent staff. The task of classification will consequently be far bigger than ever before. Under the Tribunal system it will be virtually impossible for the Commission to carry out the regrading ; publication of the Classification List and payment of increased salaries where regradings are involved could be delayed indefinitely. In an endeavour to overcome this difficulty, discussions have been held with the Public Service Association. They have agreed to support the Commission in a recommendation to the Government for amending legislation to enable the 1951 degrading to proceed as usual, subject to rights of employees being protected. STAFF EMPLOYED AND SALARIES Staff Employed Numbers of staff employed and salaries paid at the Ist April, 1949, are set out in ■Tables I, 11, and 111 of the Appendix. Table I shows permanent employees classified -according to Department, Division, and sex; Table II according to grade, Division,

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and sex, with total and average salaries in the various Divisions. Table 111 shows temporary employees in Departments and occupational groups. Casual employees engaged in terms of Public Service Regulation 150 are shown in Table IV. Tables I and II are presented in form somewhat different from what has been customary in the past. They contain more detailed statistical information which will be useful in Tribunal hearings ; in analysing turnover rates for Departments and groups in measuring the cost of general salary increases and promotions for particular groupsGeneral Salary Increase : Government Service Tribunal The Commission lodged applications with the Government Service Tribunal for an order to apply to the Public Service the provisions of the standard wage pronouncement made by the Court of Arbitration in 1949. This resulted in increases of from £5 to fIS each year on all salaries up to £1,047 —the limit of the Tribunal's jurisdiction. GENERAL Seniority The simplified formula for determining seniority referred to in our last report was introduced on Ist April, 1950. Seniority is now determined by reference to maximum salary coupled with the year of entry to that grade. Where this does not resolve seniority as between two officers, the officer with the longest continuous permanent service is deemed to be the senior. It was found that the new formula altered adversely the seniority of approximately 2,800 officers —11 per cent, of the total permanent staff. However, in making promotions seniority is subordinated to the primary consideration of efficiency and suitability. It was intended to redesign the 1950-51 Classification List to enable officers to ascertain their seniority at a glance. The new order of seniority is being shown in the 1950-51 Classification List, but owing to printing difficulties it will not be possible to redesign the List until 1951-52. Appeals The Public Service Board of Appeal has held four sittings and heard 707 appeals, of which 15 were allowed. During the year it has been necessary to call on twelve officers to act, on occasion, as deputy members of the Board. The Commission is grateful to these officers for their willingness so to act. Of the total number of 1,317 appeals lodged, 84 did not lie, 127 lapsed, and 399 were withdrawn. An unduly large proportion of appeals are withdrawn just before the date set down for hearing, by which time substantial costs have been incurred in connection with the appeal. Officers have been asked to give notice immediately they decide not toproceed with an appeal. Public Service Regulations and Manual of Instructions The Commission has at present under consideration a complete review and consolidation of the Public Service Regulations, which are badly in need of revision. At the same time it is proposed to complete a Public Service Manual of Instructions to amplify the revised regulations and consolidate all standing instructions. Both these tasks will, when completed, meet a long-felt want and make for easier administration throughout the Service,

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Designations of Permanent Heads In four Departments (Internal Affairs, Justice, Maori Affairs, and Mines ) the permanent head has the designation of " Under-Secretary," which is a relic of the days when the Minister was the Secretary. The suggestion that these four heads should be called " Secretary," the same as twelve other heads, has been discussed with them. Three agree that " Under-Secretary " is inappropriate, but only one favours " Secretary " instead. Meanwhile no change has been made. Special designations are sometimes warranted to conform to trade practice {e.g., Government Printer ; General Manager of State Fire Office) or to signify function (e.g., Solicitor-General; Public Trustee), but in most other cases departmental heads could very well be styled " Secretary " without loss of status or significance. Administrative Appointments The undermentioned administrative appointments have been made : Health : Dr. J. Cairney, Director-General, succeeding Dr. T. E. Ritchie, retired. Justice and Prisons : Mr. S. T. Barnett, Under-Secretary of Justice and Controller-General of Prisons, succeeding Mr. B. L. Dallard, retired. Land and Income Tax — Mr. H. R. Herrick, Deputy Commissioner, succeeding Mr. F. B. Aburn, retired. Mr. F. R. Macken, Deputy Commissioner of Taxes (Stamp Duties), following the amalgamation of Stamp Duties Department with Land and Income Tax Department. Tourist and Health Resorts : Mr. R. W. Marshall, General Manager, succeeding Mr. L. J. Schmitt, retired. Valuation : Mr. W. R. Beattie, Valuer-General, succeeding Mr. C. G. S. Ellis, now Assistant Director of Education (Administrative). Promotion Policy, Administrative Appointments The question of retirement is not normally raised until officers attain (a) forty years' (or more) service and age sixty ; or (b) sixty-five years of age irrespective of service. Officers with forty years' service may, however, elect to retire. This range in possible retiring-ages —fifty-six to sixty-five —presents some problems when administrative appointments are being made. On retirement of a permanent head at, say, fifty-eight years of age, his deputy, aged sixty-three, might expect to succeed him simply because he did not join the Public Service as a youth. In making administrative appointments the Commission takes the long-range view and leans to the appointment of younger men over others who have but a short time to serve, unless, of course, the appointment of a senior man is obviously justified in the interests of efficiency. It seems to the Commission that there is a strong case for a common retiring-age—-perhaps sixty years —to apply in future appointments in all cases and irrespective of length of service. This would react to the disadvantage, so far as superannuation is concerned, of officers who enter the Service as adults, as most professional people do. However, special superannuation provisions could no doubt be made to cover such cases — e.g., a provision to enable them to " buy back " sufficient service to give them forty years' contributory service at age sixty. List op Temporary Employees For the first time a list of temporary employees as at Ist April, 1949, set out on the same lines as the Classification List for permanent employees, was published for internal use by the Commission and Commission's representatives. It has proved of great value for reference and statistical purposes and has justified its retention in future years.

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Leave on Retirement from the Public Service Until 1932 it was usual to grant six months' leave on full pay to officers who were retiring after completion of forty years' service. By a decision of Cabinet in 1932, leave on retirement was limited to three months as an economy measure. Practically all the economy measures enacted in 1932 —except this—have been restored. Recently the Commission recommended to Government that the granting of six months' retiringleave be reinstated. This was approved, and the Commission may now, at its discretion, grant either six months' leave on full pay or a lump-sum payment equivalent to three months' pay in lieu thereof to officers retiring after forty years' service. Anticipation of Retiring-leave During the year the Commission decided that, in special circumstances, it would be prepared to let an officer anticipate part of his retiring-leave. The amount of leave granted is never more than has actually been earned; in other words, an employee is allowed to anticipate only the amount of leave that would be due to him if he resigned immediately. The employee is required to work an equivalent time at the end of his normal period of service and may not subsequently claim for the difference between salary at the date retiring-leave became due and salary at the date leave was anticipated. Some officers have already taken advantage of this privilege. Representation of the Commission in Centres Outside Wellington The Commission has branch offices in Auckland and Christchurch, whilst in twentyfive other centres it has appointed as its representatives senior officers of local Departments. The representative is in many cases the local District Public Trustee, and his main function whilst acting on the Commission's behalf is as local recruiting officer. In July, 1949, regional conferences of representatives were held in Wellington, Auckland, and Christchurch for the purpose of clarifying functions, securing uniformity, and improving procedure ; and as a result a system of representation which works smoothly and efficiently has been evolved. The powers of appointment of basic staff are fully delegated, and with improvements in procedure the formal action has been reduced to a simple process. The Commission records its appreciation of the part-time unpaid services given by its representatives. ISLANDS ADMINISTRATION Samoan Public Service In 1931 the Samoan Public Service, constituted under the Samoa Act, 1921, was transferred from the control of the Minister of External Affairs to that of the New Zealand Public Service Commissioner. The Samoa Amendment Act, 1949, which came into "force on the Ist April, 1950, placed the newly constituted Western Samoan Public Service under the control of a Western Samoan Public Service Commissioner appointed by the Governor-General. The appointee was Mr. R. A. Malone, formerly Assistant Commissioner of Stamp Duties at Dunedin. Provision is made for the interchange of officers among the Samoan Service, the Cook Islands Public Service, and the various New Zealand Government Services, with protection of status in the officer's parent Service. The Secretary of the Island Territories Department in New Zealand is ex officio one of the two Assistant Public Service Commissioners of Western Samoa.

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Cook Islands Public Service The Cook Islands Public Service remains under the control of this Commission. In November last an Assistant Commissioner visited Rarotonga to investigate conditions and see as many public servants as possible. There are thirteen Departments, employing the following staff:—

The Assistant Commissioner stayed a fortnight, in which period he held meetings of seven different staff groups ; visited all Departments (13), schools (5), hospitals (2); and heard 109 personal cases. Though unable to make a tour of the outer islands, he had the benefit of discussions with five of their Resident Agents who happened to be in Rarotonga for the annual session of the Legislative Council. The opportunity to talk with some one from the Commission was appreciated by the staff and enabled individual claims to be adjusted. As a result of the impressions gained at first hand, many questions of policy and practice in the Cook Islands Public Service have been or are being reviewed. A classification list for employees in the Cook Islands Public Service has now been prepared. Chatham Islands Administration There was formerly no one official presiding over Government activities in the Chatham Islands, but last year the Government decided it was time to establish a Resident Commissioner there. After advertising in the press as well as within the Public Service, the Commission appointed Mr. G. Nevill, Farm Appraiser of the State Advances Corporation, Auckland, from a large number of applicants. The Resident Commissioner was also appointed Resident Magistrate by the Minister of Justice, and took up his duties in the islands on 23rd March, 1950. His function has been defined as " primarily to further the development of the islands and to raise the living standards of the people." The appointment is for a term of five years. Fiji Further progress has been made by the Air Department and the Ministry of Works in the development and manning of the international airports at Nandi, Fiji, and other landing-grounds in the South Pacific area to meet New Zealand's obligations to the South Pacific Air Transport Council. The manning of these facilities has presented problems in recruitment, the provision of amenities, and the revision of scales of remuneration and allowances for the staff. A committee representing the Treasury, the Public Service Commission, and the Public Service Association visited Fiji in March, 1949, and reached agreement on amended scales of allowances and conditions of service which have been approved by the Commission. The improvements effected have been received with satisfaction by the staff in Fiji.

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— Europeans. Maoris. Total. Rarotonga 52 213 265 Outer islands (9) .. .. 11 145 156 63 358 421 Nine 13 21 34

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ACKNOWLEDGMENT The Commission gratefully acknowledges the co-operation and assistance it has received from permanent heads, departmental officers, and members of its own staff. All of which is respectfully submitted for Your Excellency's consideration. E. M. Campbell, Chairman, G. T. Bolt \ Memberg A. H. O'Keefe / Members ' Public Service Commission. Office of the Public Service Commission, Wellington, Ist August, 1950.

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Table I—Public Service Classification List, 1949-50: Distribution of Permanent Staff, by Departments, as at 1st April, 1949

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General Division. Professional Clerical Sub-total. Department. Division. Division. Clerks and Clerical Assistants. I Typists. Others. Total. Males. Females. Males. Females. Males. j Females. Females. Males. Females. Males. | Females. Agriculture 163 13 206 30 42 45 67 874 90 1,285 245 1,530 Air 48 71 17 32 75 31 516 13 667 136 803 Army 93 9 60 90 39 2 155 138 293 Audit 166 1 3 11 2 169 14 183 Broadcasting 6 85 28 26 50 101 448 35 565 214 779 Census and Statistics 49 1 27 4 22 76 27 103 Crown Law io 1 1 3 11 4 15 Customs 381 28 i2 13 40 63 456 81 537 Education 89 125 61 55 118 54 118 194 387 I 438 825 Government Insurance 100 16 4 23 21 104 60 164 Health (excluding Mental Hygiene) 65 197 121 56 149 84 147 1,020 465 1,423 1,888 Health (Division of Mental Hygiene) 37 60 7 9 15 15 973 634 1,079 671 1,750 Industries and Commerce 1 196 50 52 39 42 51 3 300 134 434 Internal Affairs 11 125 18 31 36 58 497 24 664 137 801 Island Territories 1 25 6 3 32 3 35 Justice and Prisons .. .. 278 28 18 34 52 229 8 525 122 647 Labour and Employment i 295 45 62 48 90 179 18 537 201 738 Land and Deeds 16 80 5 7 6 18 103 29 132 Land and Income Tax 686 137 182 169 42 868 348 1,216 Lands and Survey 85 586 85 53 39 114 159 883 238 1,121 Maori Affairs 9 212 34 41 33 69 120 i3 382 149 531 Marine 65 29 2 13 8 8 125 232 19 251 Marketing 1 83 13 16 18 26 68 168 57 225 Mines 40 68 10 24 28 19 35 167 67 224 Ministry of Works 344 920 38 360 119 171 1,276 2,900 331 3,231 479 Navy 90 26 26 59 18 250 io 366 113 New Zealand Forest Service 65 178 27 42 24 37 355 640 95 735 Police 6 2 2 9 8 11 19 Prime Minister's 56 i9 17 28 17 96 169 64 233 Printing and Stationery 19 9 10 8 307 335 65 400 Public Service Commission 68 io 7 11 24 75 45 120 Public Trust 42 569 45 10 13 206 21 642 264 906 Rehabilitation 1 301 13 107 61 88 5 414 162 576 Scientific and Industrial Research 317 84 20 15 41 31 285 701 168 869 Social Security 576 116 169 192 190 745 498 1,243 Stamp Duties "i 88 15 15 10 19 104 44 148 State Advances Corporation of New Zealand 17 365 127 68 96 168 isi 631 391 1,022 State Eire Insurance 296 60 41 44 107 337 211 548 State Hydro-electric 142 192 14 53 23 . 33 1,239 ii 1,626 81 1,707 Tourist and Health Resorts 1 118 36 16 56 23 82 217 117 334 Transport 3 63 4 20 22 26 195 281 52 333 Treasury 5 155 18 25 64 47 5 190 129 319 Valuation 53 27 21 23 41 99 173 91 264 1,586 116 8,394 1,361 1,854 1,950 2,283 9,000 2,167 20,834 7,877 28,711 Add Administrative Division (in eluding officers outside Public Service Commission control) 55 Add Educational Division (excluding teaching staff under control of Education Department) 31 Total permanent staff as at 1st April, 1949 28,797

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Table II —Public Service Classification List, 1949-50: Distribution of Permanent Staff, by Grades, Divisions, and Sex Composition, as at 1st April, 1949.

Note.—(l) Administrative Division includes some departmental officers outside Public Service Commission control: (2) Educational Division does not include teaching staff under the control of Education Department ; (3) Salary rates shown are those applicable from Ist June, 1949.

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AdminisProfessional Clerical Educational Grade. Salary Range. trative Division. Division. Division. Division. Males. Males. Females. Males. Females. Males. Females. Appropriated £ 1,061 and above .. 55 133 35 Special 771-1,060 463 19 306 9 I 671- 770 230 7 387 1 II 621- 670 148 7 423 3 1 III 571- 620 136 5 695 1 3 2 IV 521- 570 136 37 977 6 1 3 V 461- 520 138 3 1,596 24 2 3 VI 436- 460 55 5 1,844, 18 1 VI 406- 435 48 17 416 11 VI 381- 405 33 14 280 69 2 VI 356- 380 8 2 204 376 2 VI 326- 355 18 182 169 1 VI 286- 325 18 313 129 VI 256- 285 8 270 155 VI 226- 255 14 285 191 VI 191- 225 126 145 VI 166- 190 55 64 VI 0- 165 3 Total, permanent staff .. 55 1,586 116 8,394 1,361 19 12 Total classified salaries, year ending 31st £ £ £ £ £ £ £ March, 1950 82,500 1,171,820 68,320 4,221,910 440,365 14,025 5,870 Average salary rate- £ £ £ £ £ £ £ Arithmetic mean 1,500 738-9 589-0 503-0 323-6 738-2 489-2 General Division. suD-totai. Grade. Salary Range. Clerical. Typists. Miscellaneous. Total. Males. Females. Females. Males. Females. Males. Females. Appropriated £ 1,061 and above 2: 225 225 Special 771 -1,060 .. 102 880 " 19 899 I 671 - 770" .. 1 287 906 7 913 II 621 -670 3 1 203 6 780 15 795 III 571 -620 .. 12 534 7 1,380 15 1,395 IV 521 -570 28 952 32 2,094 78! 2,172 V 461 -520 92 9 20 1,730 119 3,558 175 3,733 VI 436- 460 .. 730 14 31 1,309 139 3,938 208; 4,146 VI 406- 435 .. 180 23 105 1,461 101 2,105 257 2,362 VI 381 -405 664 28 66 1,003 304 1,980 483 2,463 VI 356- 380 .. 43 22 392 670 275 925 1,069 1,994 VI 326- 355 .. 29 1,173 996 90 316 319 2,655 2,974 VI 286 -325 4 221 186 355 521 705 1,226 VI 256- 285 .. 13 197 ' 195 134 208 425 755 1,180 VI 226- 255 .. 8 78 208 185 62 492 539 1,031 VI 191 -225 13 101 185 132 23 271 454 725 VI 166- 190 33 83 851 20 14 108 246 354 VI 0-165 1 206 1 209 210 Total, permanent staff .. 1,854 1,950 2,283 9,000 2,167 20,908 7,889 28,797 Total classifiei i salaries, year £ £ £ £ £ £ £ £ ending 31st March, 1950 798,635 613,030 749,070 4,225,698 753,341 10,514,588 2,629,996 13,144,584 Average salary rate-—- £ £ £ £ £ £ £ £ Arithmetic mean 430-8 314-4 328-1 468-4 347-6 502-9 333-4 456-5

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Table III —Temporary Employees as at 1st April, 1949 (Other Than Workmen Engaged in Terms of Public Service Regulation 150)

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Male. Female. 1 a eS u o § 1 Engineers, Technici and Operators. Inspectors and Instruci I Department. Clerks. Clerical Assistants. Clerical Assistants. Typists and Machinists. Clerical, Miscellaneous Sub-total. Draughting and Com] Testers. Supervisors, Over and Foremen. Medical Officers. Storekeepers and Sto Miscellaneous. Totals. Agriculture 5 7 4 7 23 5 9 4 1 10 57 Air .. 9 5 16 7 37 1 1 3 4 46 Army.. 21 18 20 59 2 7 68 Audit 1 1 3 5 5 Broadcasting 1 1 io 12 "i i2 25 Census and Statistics .. 3 17 9 29 29 Crown Law i 1 Customs 2 '4 3 9 is 3 21 Education 2 7 24 8 43 3 "i 26 75 Government Insurance .. 1 7 1 9 9 Health (excluding Mental 2 2 19 2 25 ii '3 67 109 Hygiene) Health (Division of Mental 1 3 1 5 1 35 41 Hygiene) Industries and Commerce 13 6 14 1 34 l 7 2 44 Internal Affairs 15 30 10 4 59 50 109 Justice and Prisons 12 4 9 3 28 i 55 84 Labour and Employment 9 6 15 8 23 Land and Deeds 2 1 3 3 6 Land and Income Tax .. 2i 18 19 58 22 80 Lands and Survey 7 7 2 2 18 3 16 43 81 Maori Affairs 6 3 3 3 15 i 16 40 72 Marine 2 2 1 4 9 l 2 2 3 17 Marketing 10 6 9 4 32 4 4 8 50 Mines 7 3 2 12 1 1 '2 8 24 Wavy 5 4 i.2 6 27 2 i 2 23 55 Prime Minister's 2 1 1 5 3 11 19 Printing and Stationery 1 i 2 2 11 15 Public Service Commission 10 6 1 17 17 Public Trust 2 5 6 13 '7 20 Rehabilitation 14 i3 4 9 40 2io '2 5 257 Scientific and Industrial 1 5 8 2 2 18 i i2 2 'i 13 50 Research Social Security 19 23 26 8 76 2 78 Stamp Duties 1 2 3 3 9 9 State Advances Corporation 7 15 15 17 i 55 io 'i 69 of New Zealand State Fire Insurance 12 6 12 12 42 1 43 New Zealand Forest Service 1 4 1 5 11 i 3 4 19 State Hydro-electric 9 5 2 3 19 5 23 54 Tourist and Health Resorts 2 1 8 11 4 15 Transport 4 3 1 i 12 6 18 Treasury 13 9 16 7 45 i 46 Valuation 2 3 2 4 11 59 70 Works 20 20 5 15 60 25 23 6 157 14 128 413 Totals 261 269 311 171 9 1,021 29 59 275 11 217 14 36 681 2,343

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Table IY —Casual Employees as at Ist April, 1949, Engaged in Terms op Public Service Regulation 150 Department. Agriculture .. .. .. .. .. .. 321 Air .. .. .. .. .. .. .. 79 Army .. .. .. .. .. .. .. 43 Broadcasting .. .. .. .. .. .. 2 Census and Statistics .. .. .. .. .. 1 Customs Education .. .. .. .. .. .. 23 Health .. .. .. .. . . .. .. 322 Industries and Commerce .. .. .. .. .. 8 Internal Affairs .. .. .. .. .. .. 757 Island Territories .. .. .. .. .. 720 Labour and Employment .. .. .. .. .. 158 Land and Income Tax .. .. .. .. .. 5 Lands and Survey.. .. .. .. .. .. 967 Maori Affairs .. .. .. .. .. .. 1,009 Marine .. .. . . . . .. .. .. 65 Marketing .. .. .. . . .. .. 457 Mines .. .. .. .. .. .. .. 3,185 Navy .. .. .. .. .. .. .. 405 Prime Minister's Printing and Stationery . . .. .. .. .. 32 Public Service Commission . . .. .. .. .. 1 Public Trust .. .. .. .. .. .. 1 Rehabilitation .. .. .. .. .. .. 166 Scientific and Industrial Research .. .. .. .. 107 Social Security .. .. .. .. .. .. 2 State Advances Corporation of New Zealand .. .. .. 21 State Fire State Forest .. .. .. .. .. 1,936 State Hydro-electric .. .. .. .. .. 626 Tourist and Health Resorts .. .. . . .. 344 Transport Treasury .. ■ • • • .. •• •• 12 Valuation .. ~ .. .. .. .. 79 Works .. .. ■■ •• 8,822 Total .. .. .. •• •• 20,676

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Table V—Showing Permanent Staff Turnover During Year Ended 31st March, 1950

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Males. Females. Approximate percentage turnover—- Per Cent. Per CentClerical Division .. .. 8-3 (9-2) 18-2 (10-4) General clerks .. .. .. 10 • 1 (8 • 1) General clerical assistants .. .. 32-2 (24-1) 29-0 (25-2) Typists and machinists .. .. .. 22-9 (20 • 4) Professional Division .. .. 61 (6-3) 12-9 (1-0) Miscellaneous groups .. .. 9-9 (8-5) 28-6(19-6) Total .. .. .. 10-0 (9-2) 25-0(19-4)

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(Comparative figures for previous year are shown in parentheses) Grade. Salary Range. Males. Females. Resignations. Dismissals. Deaths and Retirements. Total Reductions. Number of Male Staff as at 1st April, 1949. Resignations. Dismissals. Deaths and Retirements. Total Reductions. Number of Female Staff as at 1st April, 1949. C, Sp. €, I C, II C, III 0, IV C, V C, VI £ 771-1,060 671- 770 621- 670 571- 620 521- 570 461- 520 436- 460 406- 435 381- 405 356- 380 326- 355 286- 325 256- 285 226- 255 191- 225 0- 190 1 (7) ? iS 17 (12) 24 (19) 55 (69) 127 (100) 48 (70) 42 (62) 40 (74) 32 (34) 45 (25) 45 (60) 46 (70) 42 (57) 30 (26) i" 3 6 (4) 1 if! 2 3 (1) 1 1 (1) 1 .. (4) 23 (18) 17 (10) 5 (7) 3 (4) 6 (4) 5 (5) 3 (7) .. (1) 1 (1) i' (i) l 24 (25) 21 (17) 12 (15) 20 (16) 31 (23) 63 (74) 136 (111) 50 (71) 44 (65) 43 (75) 34 (34) 49 (27) 47 (60) 47 (71) 43 (57) 30 (30) 341 387 423 695 977 1,596 1,844 416 280 204 182 313 270 285 126 55 I 2'' 2 • • (1) 3 (2) 33 (8) 24 (22) 34 (19) 25 (15) 45 (23) 39 (30) 34 (15) j " (1) :: a) 2 (1) 1 (1) • • (2) .. (1) l" 4 (1) 3 (1) • • (4) 3 (3) 35 (8) 24 (22) 35 (19) 25 (15) 45 (23) 39 (30) 34 (16) 1 6 24 18 11 69 376 169 129 155 191 145 67 Total, Clerical Division General clerks General clerical assistants Typists and machinists .. Professional Division Miscellaneous groups Total 605 (700) 86 (79) 234 (186) 69" (79) 762 (650) 24 (13) 7 (1) 15 (6) A <$ 65 (58) 13 (5) 11 (1) 24 "(15) 89 (65) 694 (771) 106 (85) 260 (193) 94" (96) 892 (765) 8,394 1,046 808 1 j 536 9,000 241 (135) 551' ' (483) 504 (460) 14 (1) 577 (388) 1 (2) S (6) 7 (1) 24(24) 6 (5) 6' (2) 12 (5) 1 20 (12) 248 (142) 565' ' (491) 523 (466) 15 (1) 621 (424) 1,361 1 j 950 2,283 116 2,167 1,756 (1,694) 88 (72) 202 (144) 2,046 (1,910) 20,784 1,887 (1,467) 40 (33) 45 (24) 1,972(1,524) 7,877

H—l4

Table VI —Representatives of the Public Service Commission Outside Wellington as at 30th June, 1950 Auckland .. D. A. Hunn .. .. Assistant Public Service Commissioner, Endean's Buildings, Queen Street. P.O. Box 1484. Phone 45-850. Whangarei .. .. D. O'Donoghue .. .. Public Trust Office. Hamilton— Representative .. .. D. Wilson .. .. State Advances Corporation. Assisted by .. .. W. H. W. Sweeney .. State Advances Corporation. Te Kuiti .. .. N. J. Till .. .. Lands and Survey Department. Taumarunui .. .. C. H. Butcher .. .. Justice Department. New Plymouth— Representative .. O. W. Bamfield .. .. Public Trust Office. Assisted by .. .. R. F. Spragg .. .. Rehabilitation Department. Hawera .. .. .. F. L. Barr .. .. Public Trust Office. Gisborne .. R. S. Moloney .. .. Public Trust Office. Tauranga .. J. P. Joyce .. .. Public Trust Office. Rotorua .. .. .. G. H. Frater .. .. Social Security Department. Napier— Representative .. R. W. Hope .. .. Public Trust Office. Assisted by .. .. W. E. Cockroft .. .. State Advances Corporation. Hastings .. .. L. C. Kerr .. .. Public Trust Office. Dannevirke .. .. R. S. Gillies .. .. Public Trust Office. Palmerston North— Representative .. .. A. C. Watts .. .. Social Security Department. Assisted by .. F. B. Ainsworth .. .. Agriculture Department. Wanganui— Representative .. .. L. J. Brooker .. .. Maori Affairs Department. Assisted by .. C. A. Hendry .. .. Public Trust Office. Masterton .. J. W. D. Mardon.. .. Public Trust Office. Nelson — Representative .. .. A. A. Williamson .. Works Department. Assisted by .. .. F. M. Gundry .. .. Public Trust Office. Blenheim .. R. H. Bell .. .. Lands and Survey Department. Greymouth .. H. C. Millar .. .. Public Trust Office. Hokitika .. .. F. A. Sadler .. .. Land and Deeds Department. Westport .. A. C. Bascand .. .. Marine Department. Christchurch .. .. A. G. Rodda .. .. The Representative, High Street Postoffice. P.O. Box 1258. Phone 41-928. Timaru .. .. S. A. Gibson .. .. Public Trust Office. Oamaru .. .. .. M. H. R. Jones .. .. Public Trust Office. Dunedin— Representative .. .. A. Bell .. .. .. Public Trust Office. a c'ct ri w /A- George .. .. Agriculture Department. s1 e y • • " \G. C. Brown .. .. Land and Deeds Department. Invercargill— Representative .. .. F. H. Muirhead .. .. Public Trust Office. Assisted by .. .. A. E. Turley .. .. Lands and Survey Department.

Approximate Cost of Paper.—Preparation, not given ; printing (974 copies), £B7 10s..

By Authority: E. E. Owen, Government Printer, Wellington.—l9so, Prise 9d.]

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